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Rapid Response BRIEFING
ISSUE 09 • MARCH 2015
UNDERSTANDING THE RISING
POWERS’ CONTRIBUTION TO THE
SUSTAINABLE DEVELOPMENT GOALS
Rising powers such as Brazil, India and China have been criticised for being
obstructive in the negotiations on the post-2015 development agenda. The start of
the United Nations (UN) negotiations saw high expectations for the role of these
countries in shaping the Sustainable Development Goals (SDGs). This leadership has not materialised. However, what appears to be a confrontational style of
diplomacy is in fact an assertive affirmation of long-standing principles. Rapid and
real progress is being made both in these countries’ national frameworks and their
international commitments to making the SDGs a reality, and a more nuanced
understanding of these countries’ positions in the post-2015 process is required.
Challenges to agreeing an SDG framework
As we approach the three big milestone conferences on global development issues in 2015 –
Financing for Development (Addis Ababa), the UN Summit on Sustainable Development (New York),
and the UNFCCC COP21 (Paris) – understanding the BRICS’ (Brazil, Russia, India, China and South
Africa) positions on the post-2015 process is fundamental to ensuring the successful creation of a new
framework that addresses the structural drivers of poverty, inequality and unsustainable development
and meeting the existing Millennium Development Goals (MDGs). A number of stumbling blocks to
the establishment of the SDG framework still require resolution, namely: the acceptance of Common
but Differentiated Responsibilities (CBDR) as a guiding principle; solid commitments from rich and
poor countries alike on financing for development (FFD); clarity on means of implementation and
what the global partnership for development will look like.
In stark contrast to the top-down way in which the MDGs were developed, the design of the SDGs
has been much more inclusive, which the BRICS and other developing countries see as crucial to
ensuring the continued legitimacy of the process. The SDGs were drafted by an inter-governmental
Open Working Group (OWG) bringing together 70 UN Member States sharing 30 seats, an
innovative arrangement which helped individual countries’ perspectives be represented outside of
their regional groupings. The OWG included traditional aid-giving countries such as the OECD DAC’s
members, as well as members of the G77 and China, and the Small Island States. All of the BRICS
participated actively in the process, although Russia and South Africa did not have seats in the OWG.
The prevailing view from the global South is that whilst somewhat unwieldy, 17 goals and 169 targets
should be seen as what it takes to get so many different stakeholders to sit around the table and
successfully reach a consensus of sorts.
Brazil and China in the post-2015 process
Claims that the BRICS are being obstructive, for example on the issue of security and Goal 16 in the
SDGs, are worth examining in the broader context of global governance and what might be seen as
the unspoken contestation of the universal nature of the SDGs. The G77 and China have consistently
called for the reform of the UN Security Council, and of the Bretton Woods institutions, which
resulted in International Monetary Fund reform being nominally approved in 2010 before being
blocked by the United States (US) Congress. Thus, the BRICS’ assertiveness in engaging in global
development policy outside of the realms of these institutions should therefore be seen as partly a
response to this. A key reason for the BRICS’ participation in the post-2015 process was the SDGs’
universal nature, which Brazil sees as having lost momentum. The issues which Brazil and other
influential middle-income countries (MICs) have emphasised (i.e. consumption patterns, climate
change, finance) apply particularly to developed countries. A big concern for MICs is that the SDGs
appear to have lost the power to influence the sustainability agenda of developed countries: this is a
sticking point for Brazil and others in the G77 who fear developed countries will not accept the
implications of a universal development agenda. China’s view is more nuanced, and is less focused on
the universality of the SDGs and more on the overarching concept of sustainable development, which
it refers to as inclusive development.
Rapid Response BRIEFING • THE RISING POWERS’ CONTRIBUTION TO THE SUSTAINABLE DEVELOPMENT GOALS ISSUE 09 •
Rapid Response BRIEFING
Brazil
Brazil had a key role in shaping the SDGs. It hosted and championed the Rio 92 Earth
Summit and the Rio+20 conferences and had representatives on the UN High-Level Panel
of Eminent Persons and in the UN Intergovernmental Committee of Experts on Sustainable
Development Financing. Whilst some observers expressed their disappointment in Brazil’s
lack of leadership in the Open Working Group negotiations, it has been vocal in its
participation and shown political willingness to contribute to and shape the SDG process.
However, developed countries are frustrated that, despite being one of the top ten
economies globally, Brazil insists it is still a developing country due to its high levels of
inequality and pockets of persistent poverty. China holds a similar position. Developed
countries see this as the BRICS shirking their responsibilities for the burden of development.
However, the recent climate negotiations in Lima are a good example of Brazil’s concerted
engagement with the post-2015 process. Brazil proposed a ‘concentric differentiation’
approach at COP20, designed to unlock the negotiations on CBDR whilst respecting the
original principle behind it. Should this go ahead it may pave the way for the
operationalisation of CBDR in the context of the SDGs.
Brazil was a firm supporter of the MDGs, and over the past 15 years achieved seven out of
the eight goals, as well as a steady decline in inequality – the Gini coefficient decreased
from 0.499 in 2012 to 0.497 in 2013, even as Brazil’s growth was slowing. In line with these
policy priorities, the issues defended by the Brazilian negotiators centred on poverty
eradication, its relationship with inequality; sustainable production and consumption;
financing (FFD); and keeping climate change strictly within the UNFCCC process. More
controversially, Brazil is keen to avoid what it sees as the securitisation of development
through the SDGs. It supports governance as a general principle guiding the SDGs, but is
adamant in its refusal to consider security as a stand-alone goal. The Brazil/BRICS position
on the issue of security, rule of law and governance has been contested by some in
government and civil society and by developed countries and African states. Some civil
society organisation observers are challenging Brazil on this, calling for it to heed the
relationship between security, social justice and inequality.
The Brazilians are prioritising the ‘how’ of the SDGs, concentrating on the means of
implementation for sustainable development through data disaggregation and exploring
how to reutilise the structure of the MDGs as well as Brazil’s experience of participatory
development in implementation. There are a number of indicators of Brazil’s commitment
to the post-2015 agenda, including the application of the SDG framework to the design of
the forthcoming Pluriannual Plan (PPA), a four-yearly strategic plan which should be
approved in August 2015, a full month before the SDGs are approved in September 2015.
After Rio+20 the Ministry of Finance also created new structures to address environmental
and sustainability issues, and ensured that its work with the World Bank aligned
International Development Assistance (IDA) with the Rio Principles, which is visible in the
indicators for the last replenishment of IDA. A similar dynamic is evident in the way other
ministries engage internationally; in particular, the Ministry of Health with the WHO, and
the ministries of Social Development and Agrarian Development with various UN agencies
such as the FAO, IFAD, and WFP; as well as the Community of Latin American and
Caribbean States (CELAC). Furthermore, the Brazilian Inter-Governmental Working Group
(GTI) has set up task-teams to assess how best to adapt the national monitoring and
evaluation indicators for the SDGs, looking at what worked with the MDG and national
processes. The GTI is working hard to ensure the SDG framework can be appropriated and
nationalised, in an attempt to replicate the institutionalisation which helped make the
MDGs a success. Based on the legacy of the Earth Summit and Rio+20, Brazil has a vested
interest in the success of the SDGs.
Understanding
the BRICS’
positions on
the post-2015
process is
fundamental to
ensuring the
successful
creation of a
new
framework
Other rising powers at a glance
Colombia was instrumental in the creation of the SDGs in their current format. It submitted a paper during the Rio+20
planning process, proposing a set of sustainable development goals which ‘would translate the Green Economy and
Sustainable Development debate into tangible goals, which would focus the broad debate at a practical level’.
India maintains its historical G77 positioning, and is a strong advocate for the Rio Principles and the principle of CBDR
as the fundamental basis for the universality of the SDGs. The Indian Government has been critical of the potential for
impact of the 17 goals. It has a large delegation and a strong presence in the negotiations in New York.
South Africa differs somewhat from the other BRICS and many G77 members in the post-2015 process, positioning it
with the African Union states in adopting the Common African Position (CAP), which prioritises peace and security as
fundamental for development. The emergence of an ‘African South’ within the G77 represents a marked change in the
dynamics of the group, often dominated by bigger players such as Brazil. African countries are carving out a space for their
voices to be heard in the UN.
Mexico’s growing engagements in international development are indicative of its repositioning on the global development
policy landscape. Mexico hosted various events in the context of the post-2015 process, including the regional consultation
for civil society groups from Latin America and the Caribbean (2013); the Global Thematic Consultation on Energy and the
Post 2015 Development Agenda (2013); and the High-Level Meeting of the Global Partnership for Effective Development
Co-operation (GPEDC) in 2014. It was an active participant in the OWG, sharing a seat with Peru, and advocating strongly
for tackling inequality, sustainable energy and climate change, as well as other issues of national interest such as indigenous
and migrants’ rights.
China
China is a success story for the Millennium Development Goals as the first developing country to meet the halving of its
poverty rate, which it did ahead of schedule in 2010, succeeding in cutting the incidence of poverty from 10.2 per cent to 2.8
per cent. China is well within reach of meeting all the MDGs but these social developmental achievements are the result of
national government policy, and owe little to international frameworks such as the MDGs. China has been proactive in the
post-2015 process, starting with the publication of a governmental position paper in 2013 which had poverty reduction and
sustainable development at its core, reflecting the focus on social and environmental issues in the government’s Five-Year Plan
(2011–2015). The recent bilateral China-US climate change agreement, China’s growing involvement in global development
policy, the creation of the Asian Infrastructure Investment Bank (AIIB) and the Silk Road Fund, and the ongoing reform of
Chinese cooperation all point to a new phase in China’s global diplomacy (and one which Britain has been smart to recognise,
as evidenced by its recent membership of the AIIB, much to the US’s vocal displeasure). Chinese leadership is seeking to counter
Western dominance through active contribution to shaping global development agendas. The changing balance of power on
the global landscape requires significant adjustment from developed and developing countries alike. The risk of not finding a
way to work together in fora such as the UN is that other regional and bilateral spaces become the place for where policy is
actually made, such as the Forum on China-Africa Cooperation (FOCAC), the China-CELAC Forum and the BRICS.
China challenges developed countries such as the UK and the US, which are grappling with domestic and global issues to
finding their niche in a changing world order. Even as it rises to become one of the potentially most important poles in an
increasingly multipolar world, China is still the largest developing country, and the historical continuity of its positioning with
the G77 places it firmly in line with developing and Southern countries. China sees no inherent contradiction in viewing itself as
both developing and rising, extremely powerful but also keen to learn from other countries’ experiences, and is open about the
extent of the developmental issues it is grappling with.
China sees the remit of the SDGs as belonging strictly to discussions on international development; whereas security matters
should be exclusively addressed within the bounds of the UN Security Council (UNSC), which rather limits the participation of
those who do not have a permanent seat on the UNSC. China has been quick to express its solidarity with the Common
African Position – the Chinese Premier’s speech to the United Nations General Assembly on the 70th anniversary of the UN
focused on peacekeeping and peace and security at length – whilst continuing to advocate for the separation of security and
development, a thorn in the side of developed countries in the OWG negotiations.
China’s involvement in the SDGs has been treated as a diplomatic matter rather than as part of national policy planning
processes, with responsibility for the SDGs falling to the Ministry of Foreign Affairs (MOFA), with fairly low-level involvement
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from central government. It is likely that energy is being preserved for COP21, where
the stakes are seen as being higher due to the potentially binding nature of the
agreement. There are some doubts amongst some Chinese academics to the ability of
the SDG framework to deliver a global position on achieving sustainability. Like Brazil,
their view is that national development policy priorities, frameworks and strategies are
the fundamental starting point for any debate on global goals and targets, with the
sovereignty of countries central to the framing of cooperation agreements. China
supports social, economic and environmental development, which it refers to as
inclusive development.
There is speculation that the Chinese government will formally shift its position
towards universality as it is currently framed in the SDGs, provided developed
countries fully accept extending the concept of CBDR to become an overarching
principle of the SDGs. In the words of one Chinese observer, this is still a ‘fighting
area’ in the UN over the coming months, not just with developed countries but also
between developing countries such as Brazil and G77 states, although Brazil’s proposal
for concentric responsibility may offer a way forward.
Recommendations
1. Global development policy is rapidly shifting. In a time of geopolitical
uncertainty, the UN’s continued ability to convene the world’s countries
around the table should be seen as a key opportunity for prospects of global
peace and prosperity.
2. Global policy processes are not always seen as the right fora for binding
agreements, as evidenced by the China-US bilateral climate agreement.
Cooperation through bilateral channels is one way to build and strengthen
relations which can then serve to support processes like the SDGs and
contribute to global prospects of economic, social and environmental
development.
3. Progress made through the SDG process towards greater equality in how
global policy is shaped needs to be maintained and built upon, for example in
relation to the long-overdue reform of the Bretton Woods institutions.
4. All countries need to recognise and respect the consensual process in which
the proposed 17 goals and 169 targets were arrived at, and that these are
aspirational goals which mark the starting point for a universal approach to
sustainable development. Countries keen to downsize the 17 goals should be
careful not to be seen as trying to steamroll other countries’ views.
5. The SDGs’ voluntary nature is considered key to ensuring the diversity of
countries supporting them, and concerns around their achievability should be
mitigated by evidence that a willingness to set ambitious goals is also
representative of commitment.
Further reading
Allouche, J. (2015)
‘Sustainable Development
Goals Must Consider Security,
Justice and Inequality to
Achieve Social Justice’, IDS
Policy Briefing 88, Brighton:
IDS
United Nations (2015)
Intergovernmental
Negotiations on the Post2015 Development Agenda,
Elements Paper, New York:
UN
Saad, L. (2015) Brazil and the
Post-2015 Sustainable
Development Goal Agenda:
What Has it Been Defending
So Far?, Rio de Janeiro:
World Centre for Sustainable
Development (RIO+)
Fues, T. and Ye, J. (eds) (2014)
United Nations Post-2015
Agenda for Global
Development: Perspectives
from China and Europe,
Bonn: German Development
Institute
Credits
This Rapid Response Briefing
was written by Jennifer
Constantine (Research
Consultant, IDS Centre for
Rising Powers and Global
Development, Sussex) and
Márcio Pontual (Senior Policy
Analyst, World Centre for
Sustainable Development
(RIO+).
The opinions expressed are
those of the authors and do
not necessarily reflect the
views of IDS or of the World
Centre for Sustainable
Development (RIO+).
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above.
IDS Rapid Response Briefings are published by the Institute of Development Studies and aim to
provide high-level analysis of rapidly emerging and unexpected global events and their impact
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The material has been funded
by UK aid from the UK
Government and the World
Centre for Sustainable
Development (RIO+).
However the views expressed
do not necessarily reflect the
UK Government’s official
policies or the views of the
United Nations Agencies or
Member States.
Institute of Development Studies, Brighton BN1 9RE UK
T +44 (0) 1273 606261 F + 44 (0) 1273 621202 E [email protected] W www.ids.ac.uk
© Institute of Development Studies
and World Centre for Sustainable
Development (RIO+), 2015
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Rapid Response BRIEFING • THE RISING POWERS’ CONTRIBUTION TO THE SUSTAINABLE DEVELOPMENT GOALS ISSUE 09 • MARCH 2015